Syria: Overview of the Humanitarian Response

Syria: Overview of the Humanitarian Response Rhoda Margesson Specialist in International Humanitarian Policy Susan G. Chesser Information Research Specialist February 25, 2014 Congressional Research Service 7-5700 www.crs.gov R43119

Summary The ongoing conflict in Syria that began in March 2011 has created one of the most pressing humanitarian crises in the world. As of early February 2014, an estimated 9.3 million people in Syria, nearly half the population, have been affected by the conflict. This figure includes estimates of between 6.5 million displaced inside Syria and 2.4 million Syrians displaced as refugees, with 97% fleeing to countries in the immediate surrounding region, including Turkey, Lebanon, Jordan, Iraq, Egypt, and other parts of North Africa. The situation is fluid and continues to worsen, while humanitarian needs are immense and increase daily. While internationally supervised disarmament of chemical weapons in Syria is proceeding, albeit with some difficulty, U.S. and international diplomatic efforts to negotiate a political end to the fighting in Syria opened on January 22, 2014, in Montreux, Switzerland. The Geneva II talks include some members of the Syrian opposition, representatives of the Syrian government, and other government leaders. The talks came to an end on January 31 and resumed February 10-15, 2014, but ended with little progress in efforts to end the civil war. The parties reportedly agreed to an agenda for the next round of talks. Many experts and observers hoped that a lasting agreement would have been reached on humanitarian pauses to allow access and relief to thousands of civilians blockaded in towns and cities in Syria. On February 22, 2014, the U.N. Security Council unanimously adopted Resolution 2139 (2014) to increase humanitarian access and aid delivery in Syria. U.S. Assistance and Priorities The United States is the largest donor of humanitarian assistance and is part of the massive, international humanitarian operation in parts of Syria and in neighboring countries. In FY2012 and as of February 1, 2014, the United States has allocated more than $1.7 billion to meet humanitarian needs using existing funding from global humanitarian accounts and some reprogrammed funding. U.S. humanitarian policy is guided by concerns about humanitarian access and protection within Syria; the large refugee flows out of the country that strain the resources of neighboring countries (and could negatively impact the overall stability of the region); and a protracted and escalating humanitarian emergency. International Response The international humanitarian response is massive and complex and struggles to keep pace with urgent developments that have escalated well beyond anticipated needs and continue to do so. Access within Syria is severely constrained by violence and restrictions imposed by the Syrian government on the operations of humanitarian organizations. In mid-december 2013, the United Nations launched two appeals taken together its largest appeal in history requesting $6.5 billion to meet the ongoing humanitarian needs in Syria and the region. Ongoing Humanitarian Challenges of the Syria Crisis and U.S. Policy As U.S. policy makers and the international community deliberate over what, if any, actions they can or should take on the Syria crisis, possible humanitarian policy issues for Congress include Congressional Research Service

the immediate need for access within Syria by humanitarian organizations, which has been severely constrained by violence and restrictions imposed by the Syrian government; examining U.S. assistance and priorities in an ongoing humanitarian response; balancing the Syria response with domestic priorities and other humanitarian concerns worldwide; ensuring the ongoing willingness and cooperation of Syria s neighbors, which are receiving the vast majority of refugees from Syria, to keep borders open and to host refugees fleeing Syria; finding ways to alleviate the strain on civilians and those responding to the crisis as the situation worsens and becomes more protracted, including the support of initiatives, such as emergency development assistance, for communities within neighboring countries that are hosting refugees; and encouraging the participation of other countries to provide support through humanitarian admission, resettlement, facilitated visa procedures, and protection for those seeking asylum. The United States has a critical voice regarding humanitarian access in Syria, the pace of humanitarian developments and contingency planning, support to neighboring countries that are hosting refugees, and burdensharing among donors. This report examines the ongoing humanitarian crisis in Syria and the U.S. and international response and will be updated as events warrant. For background and information on Syria, see CRS Report RL33487, Armed Conflict in Syria: Overview and U.S. Response, Armed Conflict in Syria: Overview and U.S. Response, by Christopher M. Blanchard (coordinator), Carla E. Humud and Mary Beth D. Nikitin, and CRS Report R43201, Possible U.S. Intervention in Syria: Issues for Congress, coordinated by Christopher M. Blanchard and Jeremy M. Sharp. See also CRS Report R42848, Syria s Chemical Weapons: Issues for Congress, coordinated by Mary Beth D. Nikitin. Congressional Research Service

Contents Overview and Recent Developments... 1 Selected International Efforts... 3 Evolving Humanitarian Situation... 4 Situation in Syria... 4 Situation in Neighboring Countries... 6 U.S. Policy... 8 U.S. Funding and Allocation... 9 Funding for Future Humanitarian Assistance in Syria... 11 Branding... 11 U.N. and International Humanitarian Efforts... 12 International Response Framework... 12 U.N. Appeals and Other Donor Funding... 13 Syria Humanitarian Assistance Response Plan... 14 Regional Refugee Response Plan... 14 Contributions Outside the U.N. Appeals... 14 Looking Ahead: Key Challenges... 16 Figures Figure 1. Dispersal of Refugees from Syria... 5 Figure 2. Number of Syrian Refugees Registered with the United Nations High Commissioner for Refugees (UNHCR) in Egypt, Iraq, Jordan, Lebanon, Turkey, and Northern Africa... 7 Figure 3. Distribution of Refugees, by Country... 8 Tables Table 1. U.S. Humanitarian Assistance to the Syria Complex Emergency... 9 Table 2. 2014 International and U.S. Funding, by Destination Country... 10 Table 3. 2012-2013 International and U.S. Funding, by Destination Country... 10 Table 4. 2014 Requirements and Funding Received for the Syria Humanitarian Assistance Response Plan (SHARP)... 14 Table 5. 2014 Requirements and Funding for the Syria Regional Refugee Response Plan (RRP)... 14 Table 6. 2014 Total Requirements and Funding Received for Syrian Crisis... 15 Table B-1. Agencies Implementing Projects within the Syria Humanitarian Assistance Response Plan (SHARP), the Regional Refugee Response Plan (RRP), and Projects Outside the Appeals... 19 Table D-1. Top 25 Country Donors in Response to the Syria Arab Republic Civil Unrest Humanitarian Funding... 22 Congressional Research Service

Table E-1. Pledges Not Converted... 23 Appendixes Appendix A. Selected Implementing Partners Receiving U.S. Funding, 2014... 18 Appendix B. Selected Humanitarian Projects in Syria and the Region... 19 Appendix C. Selected Humanitarian Partners Serving the Syria Arab Republic Civil Unrest, 2014... 21 Appendix D. U.S. and International Humanitarian Country Donors to the Syria Crisis, 2012-2014... 22 Appendix E. 2014 Pledges Not Converted to Commitments or Contributions as of February 1, 2014... 23 Contacts Author Contact Information... 24 Congressional Research Service

Overview and Recent Developments 1 Congress has demonstrated an ongoing interest in many different aspects of the nearly three-year civil war in Syria. The humanitarian situation, in particular, has garnered significant bipartisan attention. Members have proposed and enacted legislation addressing the issue and have held hearings on the U.S. and international humanitarian response to the conflict. Although not discussed in this report, the use of chemical weapons in Syria on August 21, 2013, triggered an intense debate over possible U.S. military intervention. 2 This debate created temporary momentum focused on the dire humanitarian situation within Syrian where humanitarian organizations remain severely constrained by the conflict, fighting, and restrictions imposed by the Syrian government. Humanitarian assistance has traditionally been one of the least controversial types of foreign aid, and in the Syria context, it has so far been one avenue in which the United States has provided support to Syrian civilians absent a political solution. The United States remains the largest humanitarian donor, currently providing roughly 51% of the funding for the humanitarian response in calendar year (CY) 2014, but with an average of 25% in CY2012- CY2013. U.S. humanitarian policy is guided by concerns about access and protection within Syria; the large refugee flows out of the country that strain the resources of neighboring countries (and could negatively impact the overall stability of the region); and an already escalating and protracted humanitarian emergency. Estimated Numbers at a Glance (As of January 31, 2014) Syria s total population: 21.4 million Number in need of humanitarian assistance: 9.3 million (of these, over 3 million are in hard-toreach and besieged areas) Number of children affected by the crisis in Syria: 5.5 million Number of Internally Displaced Persons (IDPs) within Syria: 6.5 million Number of refugees fleeing Syria and seeking protection in neighboring countries and North Africa: 2.4 million Source: Humanitarian Bulletin, Syrian Arab Republic, Issue 41, January 31, 2014, United Nations Office for the Coordination of Humanitarian Affairs. Along with the international community, the United States provides humanitarian assistance to civilians affected by the conflict both inside and outside Syria. Such assistance includes medical care and medical supplies (including immunization programs), food, water, shelter, and other non-food items such as blankets and clothing. It also supports programs focused on psycho-social rehabilitation of refugees and the prevention of gender-based violence. 3 1 For background on the Syria situation, see CRS Report RL33487, Armed Conflict in Syria: Overview and U.S. Response, coordinated by Christopher M. Blanchard. 2 CRS Report R43201, Possible U.S. Intervention in Syria: Issues for Congress, coordinated by Christopher M. Blanchard and Jeremy M. Sharp. See also CRS Report R42848, Syria s Chemical Weapons: Issues for Congress, coordinated by Mary Beth D. Nikitin. 3 The very nature of humanitarian emergencies the need to respond quickly in order to save lives and provide relief has resulted in a broad definition of humanitarian assistance, on both a policy and operational level. While humanitarian assistance is assumed to address urgent food, shelter, and medical needs, the agencies within the U.S. government providing this support expand or contract the definition in response to circumstances. Congressional Research Service 1

Since the conflict in Syria began in March 2011, it has reportedly wounded an unknown number of civilians and claimed tens of thousands of lives. Some estimate the death toll to be as many as 100,000 to 130,000 and others say it is likely much higher. 4 It has also displaced millions inside Syria and across borders into neighboring countries. It is estimated that more than 2% of the preconflict Syrian population of 21.4 million has been killed, maimed, or wounded over the course of the conflict. In addition, allegations by human rights groups of serious human rights violations have emerged over the past two years and increased dramatically in recent months. Observers claim that hundreds of detainees and political prisoners have died under torture. The U.N. Independent International Commission of Inquiry on the Syrian Arab Republic pointed to the reckless manner in which parties to the conflict conduct hostilities as a main cause of the civilian casualties and displacement. 5 The International Committee of the Red Cross (ICRC) has repeatedly urged all sides to fully comply with international humanitarian law. The ICRC currently has no access to visit detainees. The United States and many other countries have increasingly recognized the human rights crisis, which not only exacerbates the humanitarian situation, but raises the prospect that atrocities reaching the level of crimes against humanity and war crimes by armed groups may have been committed, including the use of chemical weapons that killed (by some reports) as many as 1,400 civilians on August 21. On January 17, 2014, High Commissioner for Human Rights Navi Pillay condemned the obstruction of food and medical deliveries to those living in the Yarmouk Palestinian refugee camp, emphasizing that starving civilians as a method of combat was prohibited under international law. Other reports of mass executions of detainees on the one hand and killing of civilians on the other have also generated condemnation. Outside Syria, humanitarian workers have observed a sharp rise in gender-based crimes, including rape and sexual violence, as well as exploitation and discrimination in refugee camps and informal settlements. The short- to medium-term outlook for the resolution of the conflict in Syria and impact on its neighbors is not positive. The United States and other third parties face a number of difficult policy choices with limited potential to decisively shape the overall outcome. These issues are addressed in other CRS reports. As the international community deliberates over what action it can or should take on the crisis, a massive humanitarian operation continues in parts of Syria and in neighboring countries. 4 On January 2, 2013, the U.N. Human Rights Office reported individuals killed in Syria between March 15, 2011, and November 30, 2012, numbered 60,000. The figure did not distinguish between combatants and non-combatants. Navi Pillay, the U.N. Human Rights Commissioner, stressed the analysis was a work in progress. See http://www.ohchr.org/ EN/NewsEvents/Pages/DisplayNews.aspx?NewsID=12912&LangID=E. Seven independent groups reportedly contributed to the data analysis, which caused some to question the integrity of the results. The United Nations and others have since cited the 60,000 number as a base figure and added to it over time; for example, subsequent figures cited are 80,000 and then in July 2013, 100,000. An updated study conducted by data specialists on behalf of the Office of the U.N. High Commissioner for Human Rights reported 92,901 documented cases of individuals killed in Syria between March 2011 and the end of April 2013. It remains unclear how many of these casualties are civilian. See Updated Statistical Analysis of Documentation of Killings in the Syrian Arab Republic, Commissioned by the Office of the U.N. High Commissioner for Human Rights, Human Rights Data Analysis Group, June 13, 2013. 5 Report of Commission of Inquiry on Syria A/HRC/22/59, February 5, 2013. Congressional Research Service 2

Selected International Efforts On October 2, 2013, the U.N. Security Council issued a Presidential Statement urging Syrian authorities to facilitate the expansion of humanitarian relief operations and lift bureaucratic impediments and other obstacles in Syria. 6 Although non-binding, the wide-ranging statement indicated that the Council members recognized the deterioration of the humanitarian situation and the need to address particular elements, including access. As of the end of January 2014, over 3 million people were currently estimated to be living in hard-to-reach areas or those besieged by either the Government of Syria or opposition forces. 7 Moreover, reports of intentional policies of starvation in areas under siege by the government, attacks against civilians and indiscriminant use of heavy weapons, and a weak health infrastructure that is often under deliberate attack illustrate the dire conditions under which civilians are trying to survive. Valerie Amos, U.N. Under Secretary General for Humanitarian Affairs and Emergency Relief Coordinator, U.N. Office for the Coordination of Humanitarian Assistance (UNOCHA), last briefed U.N. Security Council members on December 3, 2013. On December 31, Amos condemned the attacks against civilians in Aleppo and raised concerns about the government s indiscriminant use of heavy weapons. In a January 17, 2014, note to Council members, she acknowledged incremental progress in some situations, but emphasized the intense needs of civilians in besieged areas. For months, Amos has publicly called for all parties to end the violence, allow access for aid organizations, and respect their obligations under international human rights and humanitarian law. The Geneva II talks in Switzerland, which include some members of the Syrian opposition, representatives of the Syrian government, and other government leaders, were launched on January 22, 2014. The first round came to an end on January 31. Many experts and observers hoped that a lasting agreement would have been reached on humanitarian pauses to allow access and relief to thousands of civilians blockaded in towns and cities in Syria. On February 6, 2014, a representative of the U.N. Secretary-General welcomed the reports that the Syrian parties have agreed to a humanitarian pause to allow civilians out of, and aid into, Old Homs City. 8 The United Nations and its humanitarian partners prepositioned food and medical supplies on the outskirts of the besieged city with staff on standby to assist as a temporary ceasefire allowed some access, delivery of aid, and evacuations of civilians. A second round of the Geneva II talks took place in Switzerland between February 10-15, but ended with little progress in efforts to end the civil war. The parties reportedly agreed to an agenda for the next round of talks. On February 22, 2014, the U.N. Security Council unanimously adopted Resolution 2139 (2014) to increase humanitarian access and aid delivery in Syria, which demands that all parties, in particular the Syrian authorities, promptly allow rapid, safe and unhindered humanitarian access for U.N. humanitarian agencies and their implementing partners, including across conflict lines and across borders. 9 The five-page resolution is comprehensive in its statement about the humanitarian situation, specifically addressing the impact on civilians in Syria and the region, and 6 See U.N. Security Council, Statement by the President of the Security Council, S/PRST/2013/15, October 2, 2013. 7 OCHA, Humanitarian Bulletin, Syrian Arab Republic Issue 41, January 31, 2014. 8 Office of the Spokesperson for the Secretary-General, Highlights of the Noon Briefing by Farhan Haq, Acting Deputy Spokesperson for the Secretary-General, U.N. Welcomes Reported Agreement on Humanitarian Pause for Homs, Syria, February 6, 2014. 9 U.N. Security Council S/RES/2139 (2014), February 22, 2014. Congressional Research Service 3

the efforts of host countries, the United Nations, and humanitarian actors to respond to the crisis. It also condemns the violations of human rights and international humanitarian law; demands the end to all forms of violence, the cessation of attacks against civilians, and indiscriminate use of weapons; and calls for the implementation of the aforementioned October 2, 2013, statement by the President of the Security Council. 10 In addition, it calls on parties to lift the sieges of populated areas and allow the delivery of food and medicine. Citing the Syrian authorities in particular, the Council urges all parties to take all appropriate steps to facilitate the efforts of the United Nations, specialized agencies, and all humanitarian actors engaged in humanitarian relief activities, to provide immediate humanitarian assistance to the affected people in Syria. The resolution touches on medical neutrality, protection of civilians, detention and torture, and security of aid workers. It demands an end to impunity for violations of international humanitarian law, and condemns the rise of Al-Qaedaaffiliated terrorist attacks. The Council requests that the Secretary-General submit a report to it every 30 days on the implementation of the resolution and expresses its intent to take further steps in the case of non-compliance. On February 25, 2014, the General Assembly held an informal briefing on the humanitarian situation in Syria, at which the Secretary-General delivered remarks. Other senior officials also spoke at the meeting. 11 Evolving Humanitarian Situation The humanitarian situation in Syria and in neighboring countries is dire. As conditions inside Syria continue to deteriorate, UNOCHA estimates that of an overall population of just fewer than 21.4 million, nearly 50% (9.3 million people) are in need of humanitarian assistance, including between 6.5 million displaced inside Syria. 12 The number of Syrians that have been displaced as refugees, primarily to countries in the immediate surrounding region, exceeds 2.4 million. Situation in Syria Intense fighting and violence, population displacement, lack of basic public services, and economic collapse drive the humanitarian crisis. In recent months, cities and towns in Syria under siege by the government or opposition forces have added a layer of desperation for an estimated 3 million civilians trapped and without access to humanitarian assistance. The conflict has brought out social, political, and sectarian tensions among Syrians in general amid concerns for minority groups in particular. The destruction of housing and infrastructure (hospitals, schools) combined with economic collapse has affected most Syrians. Food, water, sanitation, medical assistance, shelter, and essential non-food items are critically needed, particularly in areas that have seen intense fighting. Winter conditions have only compounded the situation. In addition, 10 U.N. Security Council S/PRST/2013/15, October 2, 2013. 11 Secretary-General SG/SM/15665 GA/11486 IHA/1336 Secretary-General, in General Assembly, Urges Syrian Parties to Ease Humanitarian Access, Treat Civilians Humanely, February 25, 2014. 12 U.N. Office for the Coordination of Humanitarian Affairs, Humanitarian Bulletin: Syria, Issue 36, 8 October 4 November 2013. Congressional Research Service 4

other critical health concerns, such as the outbreak of polio have highlighted the consequences of war and challenges faced by a vulnerable population. The number of Internally Displaced Persons (IDPs) estimated to be 6.5 million is very fluid. Many Syrians, some of whom have been displaced multiple times, leave their homes to escape violence and then return when conflict in their area decreases. It is not clear how many IDPs are affected by repeat displacements, nor if, or how often, they are included in IDP counts. Many IDPs stay in unofficial shelters, unfinished buildings, makeshift accommodations, and unofficial camps. IDPs are predominantly women, children, and the elderly. Figure 1. Dispersal of Refugees from Syria Source: Created by CRS, with numbers from the Syria Regional Refugee Response, U.N. High Commissioner for Refugees, http://data.unhcr.org/syrianrefugees/regional.php, as viewed on February 1, 2014. Syria also hosts refugees from elsewhere, and these populations have been vulnerable to the conflict. Of the estimated 530,000 Palestinian refugees living in Syria, approximately 420,000 require humanitarian assistance, of which 235,000 nearly half of the original number of Palestinian refugees hosted by Syria have been internally displaced. In addition, Palestinian refugees have approached the U.N. Relief and Works Agency for Palestine Refugees in the Near East (UNRWA) in Lebanon and a much smaller number have registered with UNRWA in Jordan. There have been reports of some Palestinian refugees finding their way to Gaza, Egypt, and Turkey, and in smaller numbers to Malaysia, Thailand, and Indonesia. Reportedly, Palestinian refugees in Syria are disproportionally and increasingly vulnerable. Many are living in areas that have seen intense fighting; they have nowhere to go within Syria and external flight options are limited. A case in point is the Yarmouk refugee camp near Damascus. From a pre-conflict population of about 160,000, there are approximately 18,000 Palestinians Congressional Research Service 5

(and possibly non-palestinian civilians) in the camp. Yarmouk has been under siege and little to no humanitarian access has been possible for months, despite UNRWA s calls for continuous, uninterrupted access. On January 30, 2014, a U.N. convoy entered Yarmouk and distributed food parcels, the first major distribution since July 2013. Syria also hosts approximately 68,000 registered refugees who originate mainly from Iraq, Afghanistan, Somalia, and Sudan. Other vulnerable populations include third country nationals and vulnerable migrants. At this point it is not known how many of the refugee and vulnerable populations have been displaced. Moreover, these numbers do not account for populations who may have been living in Syria, but were not registered as refugees. For example, it is thought that 1 million or more Iraqis fled to Syria from Iraq between 2003 and 2006; current estimates suggest this number is now approximately 500,000, of which about 10% are registered with UNHCR. Situation in Neighboring Countries The threat of a fragmented Syria and difficult challenges for neighboring countries hosting refugees have created a fragile security and political environment. As of early February 2014, more than 2.4 million Syrians have been forced to flee the violence and conflict with 97% seeking refuge in countries in the immediate surrounding region, primarily Lebanon, Jordan, Turkey, Iraq, Egypt, and in other parts of North Africa. The number of registered refugees (or those awaiting registration) has increased dramatically. 13 Many observers are predicting a further spike in the number of displaced persons. Experts recognize that this number is likely much higher as some Syrians have not registered, presumably from fear or other reasons, and have chosen instead to blend in with the local population, living in rented accommodations and makeshift shelters, particularly in towns and cities. The added economic, energy, and natural resource pressures of large Syrian refugee populations weigh heavily on neighboring countries, particularly in Lebanon, Jordan, and Turkey. Palestinian refugees from Syria also complicate the underlying political dynamics of Lebanon and Jordan, where large Palestinian refugee populations already reside. The governments of countries hosting refugees have concerns about the potential political implications of allowing displaced populations to remain, especially for a protracted period of time. 13 Registration of refugees is a key step to ensure individuals have access to services and assistance. With the large number of refugees seeking assistance in neighboring countries, the U.N. High Commissioner for Refugees (UNHCR) cannot immediately register all those who seek asylum. Those who approach UNHCR and cannot be registered are given appointments and are considered to be awaiting registration. Only the more vulnerable individuals receive assistance while waiting to be registered. UNHCR is trying to increase registration capacity and reduce waiting periods in countries hosting Syrian refugees. Congressional Research Service 6

Figure 2. Number of Syrian Refugees Registered with the United Nations High Commissioner for Refugees (UNHCR) in Egypt, Iraq, Jordan, Lebanon, Turkey, and Northern Africa (An additional 48,378 persons are awaiting registration as of February 1, 2014.) 3,000,000 2,500,000 2,301,967 2,425,354 2,000,000 1,500,000 1,558,395 1,000,000 500,000 98,302 495,781 0 Jun-12 Dec-12 Jun-13 Dec-13 Source: Compiled by CRS from information provided by the United Nations High Commissioner for Refugees at its Inter-agency Information sharing Portal on the Syria Regional Refugee Response at http://data.unhcr.org/ syrianrefugees/regional.php. Note: All figures are taken from the 30 th day of the month, every six months, except the last number, which was taken on February 1, 2014. The types of assistance and shelter options available to refugees vary in the countries that are hosting them. In Turkey, Jordan, and Iraq, there are 24 refugee camps and new camps are under construction. In camps, assistance is provided by host governments and the international community, and there are concerns about overcrowding and the risk of disease. However, the U.N. Office for the Coordination of Humanitarian Assistance (UNOCHA) estimates that the majority of Syrian refugees (more than 80%) are living outside camps in mostly urban settings. The impact on many host communities has become overwhelming. Overcrowded schools, inadequate hospital services, impacts on resources such as water all contribute to the burden for neighboring countries. Protection, particularly for vulnerable refugees from violence but also in meeting basic needs, are urgent priorities. One of the biggest challenges is shelter. The refugees outside of camps face high rental rates, overcrowding, and competition for space in addition to other living expenses and limited, if any, work opportunities. The onset of winter only compounded the challenges these populations face. Urban refugees are often invisible and difficult to identify and assist. Jordan, Lebanon, and Turkey host the vast majority of the displaced populations outside Syria. (See Figure 2.) The United States and the international community have recognized the contribution of those countries hosting refugees and supported their efforts, while encouraging them to keep their borders open to those fleeing conflict in Syria. At different times during the conflict, the number of refugees crossing into neighboring countries has decreased at some border points because refugee-hosting countries have taken steps to restrict the flow, causing those fleeing Syria to be stranded inside its border areas. Congressional Research Service 7

Figure 3. Distribution of Refugees, by Country (Refugees registered or awaiting registration with the United Nations High Commissioner for Refugees, as of February 1, 2014) Lebanon 864,944 Turkey 594,854 Egypt and N. Africa 151,612 Jordan 596,800 Iraq 217,144 Source: Syria Regional Refugee Response, United Nations High Commissioner for Refugees, http://data.unhcr.org/syrianrefugees/regional.php. Note: North Africa countries include Morocco, Algeria, and Libya. U.S. Policy The Obama Administration has consistently supported providing humanitarian assistance to all civilians affected by the conflict in Syria. It is working closely with neighboring countries, other governments, the United Nations, and humanitarian partners in its response to the crisis. Congress has also demonstrated sustained interest and bipartisan support for a robust U.S. humanitarian response, although Members may be divided over other dimensions of U.S. policy. 14 U.S. humanitarian priorities in Syria include providing as much humanitarian assistance as possible through partners and multilateral mechanisms; supporting protection activities for vulnerable populations; helping to develop a strong multilateral response to support countries hosting refugees; encouraging donor pledges and contributions; and 14 For example, several bills in the 113 th Congress include provisions that address humanitarian issues, such as H.R. 1327, the Free Syria Act of 2013; S. 617, the Syria Democratic Transition Act of 2013, and S. 960, Syria Transition Support Act of 2013; and hearings, including the Senate Committee on Foreign Relations, Syria s Humanitarian Crisis, March 19, 2013, the U.S. Helsinki Commission, Fleeing to Live: Syrian Refugees in the OSCE Region, June 13, 2013; the Senate Committee on Foreign Relations, Syria Hearing, October 31, 2013. Congressional Research Service 8

building capacity within Syria and among its neighbors for immediate assistance and contingency planning for what has become a protracted crisis. The Bureau for Democracy, Conflict, and Humanitarian Assistance (DCHA) of the U.S. Agency for International Development (USAID) and the State Department s Bureau of Population, Refugees, and Migration (PRM) coordinate U.S. humanitarian assistance for Syria. U.S. Funding and Allocation In FY2012 and as of February 1, 2013, the United States has allocated more than $1.7 billion for humanitarian activities both inside Syria and in neighboring countries, which includes the most recent announcement of $380 million in additional U.S. humanitarian assistance to help those affected by the crisis. 15 The U.S. contribution has been allocated in response to U.N. humanitarian appeals, as well as supporting other projects using existing funding from global humanitarian accounts and some reprogrammed funding. 16 Table 1. U.S. Humanitarian Assistance to the Syria Complex Emergency (For Needs in Syria and Neighboring Countries [as of January 30, 2014]) U.S. Agency Amount USAID/Office of Foreign Disaster Assistance (OFDA) $370,986,181 USAID/Food For Peace (FFP) $530,699,121 State Department/Bureau of Population, Refugees and Migration (PRM) $838,084,221 Total $1,739,769,523 Source: USAID, Syria Complex Emergency Fact Sheet #7, Fiscal Year (FY) 2014, January 30, 2014. Note: Global humanitarian accounts include International Disaster Assistance (IDA), Migration and Refugee Assistance (MRA), Emergency Refugee and Migration Assistance (ERMA) and emergency food assistance, Food for Peace (FFP). See Appendix A for a selected list of implementing partners receiving U.S. funding in FY2014. U.S. assistance is distributed based on need throughout all 14 governorates of Syria. The United States is working through a number of channels to provide this assistance, including U.N. entities, non-governmental organizations (NGOs), community-based partners, and the Syrian Opposition Coalition s Assistance Coordination Unit. In addition, the United States works with host countries in the region that support the influx of Syrian refugees. The distribution of its humanitarian assistance is listed in the tables below. 15 According to the State Department, there has only been one account transfer to address humanitarian needs. On April 5, 2013, the State Department notified Congress of its intent to reprogram $220 million originally appropriated to the FY2012 Pakistan Counterinsurgency Capability Funds to the humanitarian crisis in Syria. This would include $120 million for the International Disaster Assistance (IDA) account and $100 million for the Migration Refugee Assistance (MRA) account. 16 The appeals process brings aid organizations together to coordinate a response and appeal for funds through a collaborative plan. The two U.N. appeals, the Syria Humanitarian Assistance Response Plan and the Regional Response Plan, are described in the next section, U.N. and International Humanitarian Efforts. Congressional Research Service 9

Table 2. 2014 International and U.S. Funding, by Destination Country (As of February 1, 2014) Destination Country All Donors, 2014 Contributed/ Committed Funding, as of February 1, 2014 a United States, 2014 Contributed/ Committed Funding, as of February 1, 2014 a United States Funding as a Percentage of Total Funding Egypt $4,097,920 $3,500,000 85% Iraq $5,178,163 $2,500,000 48% Jordan $63,469,878 $21,500,000 34% Lebanon $71,234,277 $20,500,000 29% Liberia $4,397,394 $0 0% Region $302,866,540 $192,600,000 64% Syrian Arab Republic $336,142,840 $159,345,900 47% Turkey $7,000,000 $7,000,000 100% TOTAL $794,387,012 $406,945,900 51% Source: Compiled by CRS from information provided by the Financial Tracking Service of the United Nations Office for the Coordination of Humanitarian Affairs (OCHA) at http://fts.unocha.org/pageloader.aspx?page= home. a. Contribution: the actual payment of funds or transfer of in-kind goods from the donor to the recipient. Commitment: a legal, contractual obligation between the donor and recipient entity, specifying the amount to be contributed. Table 3. 2012-2013 International and U.S. Funding, by Destination Country Destination Countries All Donors, 2012-2013 Contributed/ Committed Funding a United States, 2012-2013 Contributed/ Committed Funding a United States Funding as a Percentage of Total Funding Egypt $38,627,332 $15,999,210 41% Iraq $226,108,944 $67,464,982 30% Jordan $1,116,716,825 $190,546,787 17% Lebanon $1,108,437,427 $242,381,586 22% Region $835,099,556 $77,838,645 9% Syrian Arab Republic $1,827,479,776 $671,739,865 37% Turkey $256,866,218 $83,416,039 32% Bulgaria $1,420,691 $0 0% Tunisia $116,897 $0 0% TOTAL $5,410,873,666 $1,349,387,114 25% Source: Compiled by CRS from information provided by the Financial Tracking Service of the United Nations Office for the Coordination of Humanitarian Affairs (OCHA) at http://fts.unocha.org/pageloader.aspx?page= home. a. Contribution: the actual payment of funds or transfer of in-kind goods from the donor to the recipient. Commitment: a legal, contractual obligation between the donor and recipient entity, specifying the amount to be contributed. Congressional Research Service 10

Funding for Future Humanitarian Assistance in Syria The Administration s FY2014 budget request total for global humanitarian accounts, including two State Department accounts (MRA and ERMA) and USAID s IDA account, overall proposed $4.1 billion in funding for global humanitarian activities along with food aid reform measures. It also included a proposed increase in FY2014 ERMA funds with an allocation of $200 million for the humanitarian response to Syria. In H.R. 3547, Consolidated Appropriations Act, 2014 (P.L. 113-76), total funding for global humanitarian accounts, including emergency food aid, is $6.34 billion. The Obama Administration has not elaborated on how it plans to meet future Syria-related needs for the remainder of FY2014. The Administration could continue to draw down global humanitarian accounts, such as MRA or IDA, and if necessary request a supplemental appropriation to replenish them, or use Emergency Refugee and Migration Assistance (ERMA) funds. Possible options could also include reprogramming funds from the Overseas Contingency Operations (OCO) account. 17 The sharp increase in needs of Syrians affected by the conflict may lead Congress to consider future funding requests from the Administration, including a potential supplemental request, if the situation worsens or persists. It remains to be seen how needs related to the Syria crisis are to be balanced with other humanitarian priorities worldwide, particularly if a major disaster or crisis occurs. Branding At points during the conflict, Members of Congress have demonstrated an interest in the labeling or branding of U.S. humanitarian aid delivered to Syria so that recipients are aware of its American origins. This issue is complicated in the Syria context. Very little U.S. assistance is currently being branded. The U.S. government is trying to balance the desire to maintain visibility as a contributor of humanitarian assistance with concerns for the security of aid recipients and implementing partners who could become possible targets of attacks. Finding appropriate ways for the United States to leverage its political objectives without politicizing humanitarian aid remains a significant challenge. There has been some debate about whether the United States is receiving adequate political benefit from its humanitarian assistance efforts. Anecdotal evidence from field reports and implementing partners suggests that many Syrians who may be receiving U.S. assistance remain unaware of its origins, or assume it is from a foreign government other than the United States. In response, some Members of Congress and observers have argued that the United States should begin to more aggressively brand U.S. aid to enhance local perceptions that the people of the United States stand in solidarity with Syrians. 18 Humanitarian groups argue that objectives such as winning hearts and minds potentially compromise the neutrality of humanitarian assistance in 17 Funding for OCO supports extraordinary, but temporary, costs of the Department of State and USAID in Iraq, Afghanistan, and Pakistan. See Executive Budget Summary, Function 150 & Other International Programs, Fiscal Year 2014, and p. 97. 18 See USAID, Syria Complex Emergency, Fact Sheet #10 FY2013, February 28, 2013. Sly, Liz, U.S. Feeds Syrians, But Discreetly: Humanitarian Aid Operation Shrouded in Secrecy to Protect Recipients and Delivery Staff, Washington Post, April 15, 2013, p. 1. Congressional Research Service 11

general. In the context of Syria, experts contend that if a U.S.-funded clinic were to be targeted for its U.S. affiliation, it could jeopardize much broader humanitarian efforts there. Moreover, it is unclear whether raising awareness of U.S. humanitarian assistance would do much to change perceptions, as Syrians who support the opposition want weapons and other kinds of military help. The Administration is reportedly looking into ways of branding U.S aid that do not jeopardize the safety of those on the ground. U.N. and International Humanitarian Efforts International efforts to address the humanitarian situation in Syria range from global U.N. appeals to on-the-ground food aid to communities and assistance in camps and settlements. The following sections describe these and other activities in more detail. International Response Framework International humanitarian agencies and governments continue to work in Syria and in countries in the region to provide and coordinate assistance to the civilian populations. UNOCHA leads the humanitarian effort within Syria and has established relief sectors or clusters where possible. UNHCR leads efforts to provide assistance to Syrian refugees in neighboring countries, including non-food items such as shelter, clothing, fuel, cash assistance, and other essential items, as well as assistance to host communities that are supporting refugees. In Syria, humanitarian access is constrained by a number of factors, including insecurity and conflict, obstruction by the Syrian government or opposition forces, lack of transportation, and limited availability of fuel. The Syrian regime significantly restricts the ability of humanitarian organizations to operate by imposing bureaucratic and administrative obstacles, such as visa restrictions for U.N. staff, international organizations, and NGOs, and limiting the number of humanitarian partnerships. While the Syrian government has permitted some aid deliveries across conflict lines ( cross-line ) from Damascus to opposition-held areas using interagency humanitarian convoys, numerous checkpoints are in place en route. Cross-border access to deliver humanitarian assistance from neighboring countries to opposition areas requires the agreement and cooperation of the Syrian authorities. A number of independent aid agencies are reportedly using a two-track system for aid delivery into Syria. One is through official channels in Damascus, the other through cross-border mechanisms, such as trucking aid through Jordan and Turkey. U.N. agencies are not allowed to work across borders without Syria s consent, unless authorized by the U.N. Security Council. Speaking before the Security Council on April 18, 2013, Valerie Amos, U.N. Under Secretary General for Humanitarian Affairs and Emergency Relief Coordinator, urged the Council to grant aid agencies cross-border access without the Syrian government s permission. Experts recognize that providing humanitarian assistance within Syria may help to stem the tide of refugees seeking assistance across borders. In Syria, the United Nations and its partners have identified activities in different sectors that reflect the key priorities. Relief sectors include food security; community services and protection; health; food; water and sanitation; and shelter and non-food items. (For examples of humanitarian activities, see Appendix B.) Congressional Research Service 12

Organizations operating in-country include the Syrian Arab Red Crescent (SARC), a key Syrian implementing partner with more than 10,000 volunteers. 19 The International Committee of the Red Cross (ICRC), while maintaining its independence as a separate international organization, works with the SARC throughout the country. A number of other organizations are also working on the humanitarian response. These include 10 U.N. agencies, plus the U.N. Department of Safety and Security (UNDSS), the International Organization for Migration (IOM), and 12 international NGOs that have been authorized by the government of Syria to work with SARC. In addition, a handful of other international NGOs have agreements with relevant Syrian ministries. The government of Syria has authorized some national NGOs to provide humanitarian assistance in partnership with the United Nations. U.N. agencies have set up or are in the process of setting up hubs in several locations throughout the country. The U.N. Relief and Works Agency for Palestine Refugees in the Near East (UNRWA) is also actively responding to the needs of Palestinian refugees affected by the conflict in Syria and those who have fled to other areas within UNRWA s mandate, particularly Jordan and Lebanon. For examples of humanitarian partners working in Syria and neighboring countries, see Appendix C. U.N. Appeals and Other Donor Funding Donor funding is usually provided in response to a crisis in the form of financial contributions or relief supplies. 20 The Consolidated Appeal Process (CAP), now renamed the Strategic Response Plan, administered through UNOCHA, brings aid organizations together to coordinate a response to major humanitarian crises and disasters and appeal for funds through a collaborative plan. Funding provided for the Syria humanitarian crisis is in part through two separate U.N. appeals: the Syrian Humanitarian Assistance Response Plan (SHARP) and the Regional Refugee Response Plan (RRP). Contributions to the crisis have also been made outside of the U.N. appeals process. The SHARP and RRP appeals have been revised several times as the Syria crisis has evolved and humanitarian needs have increased. The December 18, 2012, version of the appeals was the fourth revision and covered the period January to June 2013. The fifth revision of the appeals, covering all of 2013, was launched on June 7, 2013. The sixth revision of the appeals, was launched on December 16, 2013.Together the latest SHARP and RRP appeals total $6.5 billion, making it the largest appeal for a single humanitarian emergency in the history of the United Nations. As of February 1, 2014, taken together the appeals are less than 10% funded. See Appendix D for a list of the top 25 country donors to the Syria crisis in 2012-2014. 19 The International Red Cross and Red Crescent Movement is a humanitarian network that provides protection and assistance to people affected by conflict and disasters. The Movement is not a single organization. It has three main components, all of which are guided by seven fundamental principles, including impartiality and neutrality: The International Committee of the Red Cross (ICRC), the International Federation of Red Cross and Red Crescent Societies (IFRC), and 188 individual national Red Cross and Red Crescent Societies, of which SARC is one. 20 Funding numbers are fluid and subject to change. A full accounting is typically not possible for any crisis. This may be for a variety of reasons: some assistance is not reported to governments and coordinating agencies; there may be delays in recording; and in-kind contributions can be difficult to value (this is typically left to the donor country or organization and can lead to differing standards and lack of consistency across sectors). Congressional Research Service 13

Syria Humanitarian Assistance Response Plan The Syria Humanitarian Assistance Response Plan (SHARP), which includes U.N. entities and humanitarian partners, is a U.N. appeal seeking $2.3 billion for projects inside Syria from January 1 to December 31, 2014. The plan addresses the needs of Syrians affected by conflict inside Syria. Its priorities include providing relief supplies such as food, healthcare, and water to the most vulnerable; assisting people who have fled their homes and the communities hosting them; and supporting reconstruction of critical infrastructure, including hospitals. The latest revision outlines strategic objectives and builds on findings from sectoral assessments conducted during 2013. Table 4. 2014 Requirements and Funding Received for the Syria Humanitarian Assistance Response Plan (SHARP) Syria Humanitarian Assistance Response Plan (SHARP): January-December 2014 Revised Requirements Funding Received a Unmet Requirements % Funded $2,276,149,354 $158,145,936 $2,118,003,418 7% Source: Compiled by CRS using information provided by the Financial Tracking Service. a. Contributions and commitments received as of February 1, 2014. Regional Refugee Response Plan A second U.N. appeal seeks nearly $4.2 billion for a Regional Refugee Response Plan (RRP) to cover the protection and assistance needs of up to 3.4 million Syrian refugees in the region and covers the period from January 1 to December 31, 2014. The current plan brings together the coordinated efforts of international and national organizations with UNHCR continuing to lead the overall response. 21 The main priorities for the RRP include protection, life-saving assistance, access to basic services, durable solutions (such as resettlement), and community outreach to refugees residing in urban areas and support to host communities. Table 5. 2014 Requirements and Funding for the Syria Regional Refugee Response Plan (RRP) Syria Regional Refugee Response Plan (RRP): January-December 2014 Revised Requirements Funding Received a Unmet Requirements % Funded $4,264,717,711 $367,448,346 $3,897,269,365 9% Source: Compiled by CRS using information provided by the Financial Tracking Service. a. Contributions and commitments received as of February 1, 2014. Contributions Outside the U.N. Appeals Additional bilateral and other contributions and pledges are also made outside of the U.N. appeals through direct bilateral assistance to governments, international organizations, and NGOs. Some analysts claim that a lack of transparency about these contributions makes it difficult to know 21 Palestinian Refugees are mostly covered under support provided through UNRWA. Congressional Research Service 14